Allow device owner to configure secondary users

Currently the device owner can create secondary users, but unless
it is a system app it will not be installed and will not be able
to pass data easily from the code that creates the user and any
code running on that user.

This allows the device owner to install itself while creating a
user and start up a service to configure that user.  createUser
takes an bundle so that the device owner can pass across any
initial setup data it needs to, this bundle will be sent to
the admin receiver in onEnable.

Change-Id: Ic1f8565dd2a7bd85363527cf68b0ecd4dc9c3636